MENTAL RETARDATION PAST AND PRESENT

MENTAL RETARDATION PAST AND PRESENT

President's Committee on Mental Retardation* Joseph A. Califano, Jr. Chairman Mrs. N. Lorraine Beebe Vice Chairman David M. Barrett Geraldine M. Clark, Ph.D. James D. Clements, M.D. Henry V. Cobb, Ph.D. Jeanne C. Collier Bill J. Doggett, M.Ed. Jean Katherine Elder, Ph.D. Arnold G. Gangnes, AIA Michael R. Gardner John P. Greene Morley Hudson Cecil B. Jacobson, M.D. James N. Juliana Phillip U. Martinez, M.D. Frank J. Menolascino, M.D. Dolores T. Norley Cherrie Sevick Will Beth Stephens, Ph.D. Margaret V. Tedone Margaret B. Ulle Ex Officio The Attorney General The Secretary of Labor The Secretary of Housing and Urban Development The Administrator, Community Services Administration The Director, ACTION

Mental Retardation: Past and Present President's Committee on Mental Retardation January 1977 Washington, D.C. 20201

The University of South Dakota under HEW Contract No. 105-74-7301 furnished assistance in the preparation of this publication. Dr. Henry V. Cobb, series coordinator Library of Congress Catalogue No. 76-43579 For sale by Superintendent of Documents, U.S. Government Printing Office, Washington, D.C. 20402. Mary Z. Gray, editor

Letter of Transmittal PRESIDENT'S COMMITTEE ON MENTAL RETARDATION WASHINGTON, D.C. 20201 The President The White House Washington, D.C. My dear Mr. President: I have the honor to transmit to you the tenth annual report of the President's Committee on Mental Retardation. Mental Retardation: Past and Present traces the history of America's treatment of retarded persons from the humanitarian movement of the 1850's to the present. The book documents the dark years of neglect and isolation, as well as the shining years of the Kennedy Administration when mental retardation first gained national recognition and support. Encompassed within the broad scope of this report are the current efforts of the public and private sector concerning education, services, research, terminology, testing procedures, legal rights, economics and many other facets of the complex problem known as mental retardation. Although this volume can stand alone as a unique reference guide to mental retardation, it also provides background and rationale for the recommendations presented in its companion volume, Report to the President, Mental Retardation: Century of Decision. Both books are part of the four-volume "Century of Decision" series published by the President's Committee on Mental Retardation in celebration of the nation's Bicentennial Year and the tenth birthday of PCMR. Other volumes in the series are Mental Retardation: The Known and the Unknown and Mental Retardation: Trends in State Services. As this nation starts its third century, Mr. President, we are confident that, under your leadership, citizens who are mentally retarded will have a share in that ever expanding American dream.

Acknowledgments We are indebted to the following individuals who have contributed their knowledge and experience and time to insure the accuracy and usefulness of this volume:

PCMR staff ably assisted the Committee in every step of the entire "Century of Decision" series, under the supervision of Allen R. Menefee, with Ruth Seymann handling logistics. Blanche Coll, on detail from SRS, conducted the research for much of the historical section. Every member of the President's Committee was instrumental in the production of this book, with Dr. Elizabeth M. Boggs in particular making a unique contribution. The major credit, however, belongs to Dr. Henry Cobb, the principal author, whose mastery of every aspect of the subject made this complex project a reality. Fred J. Krause Executive Director PCMR

Chapter 1 Inheritance of a Hundred Years As the fires of World War II burned out, a smouldering volcano of outraged parenthood erupted, and the mountainsides of public opinion moved. It was the emotional explosion of thousands upon thousands of frustrated and heartsick parents of retarded children across the Nation--and in England and France and Denmark and Holland and Australia and Japan. The people is the grand canyon of humanity and many many miles across. The people is Pandora's box, humpty, dumpty, a clock of doom and an avalanche when it turns loose. The people rest on land and weather, on time and changing winds. The people have come far and can look back and say, "We will go farther yet." The people is a plucked goose and a shorn sheep of legalized fraud And the people is one of those mountain slopes holding a volcano of retribution, Slow in all things, slow in its gathered wrath, slow in its onward heave, Slow in its asking: "Where are we now? What time is it?"' Carl Sandburg: The People, Yes. * These people had heard too long the old familiar answers: "Your child is defective, put him away and forget him."... "Your child is feebleminded, there is no place for him in the school."... "Your child is a vegetable he will never be anything else."... "Your daughter must be sterilized if she stays in the community."... "There's no room in the institution; your son will be put on the waiting list. How long? Perhaps in two years there will be space."... The rejections, the indictments, the closed doors and closed faces, the guilt, the doubt, the despair, the anger, the recrimination of husband to wife and wife to husband. There must be a better way. And here and there voices that said Yes there are better ways we do know better now. Retarded children can be helped. Persons who are retarded, who are defective, slow in mind, deformed and misshapen, spastic, epileptic, are still human beings. They can learn and live and laugh and realize the worth of life, even within the limits of disability. Education is possible, and is their right. Productive work is possible and they deserve an opportunity. But the world had been deeply indoctrinated with an image which made a mentally limited child a product and a progenitor of evil heredity and social degeneracy, a subhuman or non-human contaminant of the human race. This demonic image had persisted in popular thought, in statutory codes, in the regulations of educational systems, in the practices of courts, in the judgment of most of the professionals and in the dehumanizing environments of mass-care institutions. The image, growing over a half century, persisted through the period of depression and war in the 1930's and 1940's even though the knowledge was then available to expose the false basis of that image. In historical perspective, it is now possible to see the enormous injustice that a false understanding of mental disability perpetrated on disabled persons and their families, and also some of the reasons why that misconception developed and what it led to in terms of social policy and the application of the wrong remedies, the effects of which still persist today.

There have been many reviews of that history, beginning with that of Walter Fernald in 1924, who himself had been one of the principal architects of the "menace of the moron" thirty years earlier. The writings of Davies, Deutsch, Haskell, Sloan, Wolfensberger, and many others have contributed to our better understanding of the strange ideological deviation which for half a century attributed to mentally retarded people the primary responsibility for all social ills, and characterized them as people from whom society must at all cost protect itself. (The final "all cost" protection was achieved in the gas chambers of Nazi Germany.) The record is in the archives of State and Federal Governments, in the reports of the superintendents of institutions, in the Proceedings of the National Conference on Charities and Corrections, in the issues of the Journal of Psycho-asthenics and its successor the American Journal of Mental Deficiency, and in the gathering flood of books, pamphlets, articles and speeches by the growing army of the concerned. We can trace the process by which the first humanitarian efforts of 1850 to educate the "poor idiot" and make him socially competent were transformed by 1915 into deliberate programs to "identify, segregate, and sterilize every feebleminded person as a menace to social decency and racial purity: to the end that they shall not reproduce their kind." This language was typical of the statutory provisions for the control of feeblemindedness in many States well into the 1950's, elements of which still persist in some statutes today. We shall touch in this chapter only on the principal steps in that process of policy development, to show some of the influences that converged to bring it about. The industrial revolution, for all its benefits in increasing wealth and productivity through free enterprise and technological development, nevertheless produced social side effects of appalling magnitude. Factory and commerce led to the growth of the cities with concentrations of poverty, disease, crime and human misery in their slums. The exploitation of labor, especially of women and children, stultified the lives of those who could not rise out of their entrapping poverty. Meager security was undermined by the ruthless swing of the business cycle. Families were caught in a bind between having children who would provide more hands to augment family income, but who also increased the mouths to be fed. In America the floodgates of immigration were open to provide a steady supply of cheap labor welcomed at first, but eventually clogging the cities and saturating the countryside from coast to coast. The "melting pot of humanity" in fact melted only in spots, sustaining a mixture of competing nationalities and ethnic minorities at varying degrees of disadvantage in the economic "pecking-order." The Civil War, which, among other issues, was an expansion of industrialism requiring a free labor market, transformed a black slave population into a new marginal minority which eventually became explosive in its frustrations. In nineteenth century Europe and America, the mode of dealing with these festering social problems was by mixed efforts of control and philanthropy, but mainly by harsh repression. Revolts of the victims against the machines or against their owners were vigorously suppressed. The efforts of labor to organize and press its needs by arbitration or strike were met by repressive efforts to smash the unions or lock them out. Some reforms were instigated in the prisons, almshouses, and other institutions of the poor. The writings of Zola in France and Dickens in England brought some enlightenment.

Democratic society in the industrial countries identified worthiness with work and authority and property. Education, seen as a growing public responsibility and in the public good, was not yet either universal or mandatory, with little access by children of the working classes and the poor. In the factories and on the farms children were of more value as meager wage earners than as scholars. Education was still a middle-class privilege. Modern philosophy from Descartes to John Locke and their successors emphasized the centrality of thinking mind as the measure of human worth. Translated into practical historical terms, industrial society put a high premium on intellectual traits for those who had upward mobility. Intelligence of a high order is essential for the scientific, technological and managerial development of a complex social order. Even the conditions of survival in industrial society, through work, require a degree of intelligence unnecessary in simpler cultures. Differences in "smartness" determined differences in success, so that intelligence became increasingly a recognized condition of upward mobility and economic and social security, and hence rose to the top of the scale of human values. Correspondingly, limitations of intelligence became stigmatic and degrading. "Feeblemindedness" and other terms of unacceptably low levels of intelligence came to epitomize inability to compete effectively for the good things of life. A burden on those who could and did succeed, it stood out starkly as the most dreaded of all disabilities, worse by far than crippled limbs, unseeing eyes or unhearing ears. More than that, the "idiot," the "imbecile," the "moron" became not only an "unfortunate" victim to be pitied and helped, but also a monstrous purveyor of evil to be searched out, segregated, degraded, mutilated and even, in the extreme time and place, ruthlessly destroyed. Why? Humanitarian Beginnings In 1846, Dr. Samuel Gridley Howe of Boston, stimulated by work done in Europe and by his own efforts in teaching the blind, and the deaf-blind, persuaded the Massachusetts Legislature to appoint him as head of a commission to "inquire into the conditions of the idiots in this commonwealth, to ascertain their number, and whether anything can be done for their relief." Howe thereupon undertook the first systematic survey of a mentally defective population. He discovered a total of 755 "idiots" in 182 towns with a combined population of 392,586. From this, Howe concluded that on the same ratio of 2 per thousand there was a total of 33,000 in the U.S. but he admits that "many, perhaps most, of the idiotic children escaped the notice of the commission." Of those identified, Howe and his associate personally interviewed a total of 574 cases on a complex and, for that day, quite scientific schedule. The amount of detailed information he obtained was astonishing. The cases ranged in age from 6 months to 103 years, and in severity from "the lowest class of mere organisms, to 'simpletons'... the highest class of idiots." Most came from backgrounds of poverty; 225 were from indigent families; 220 were town or State paupers; only 84 had economically secure support. "The great end of all this inquiry was to ascertain the capacity of idiots for improvement." Dr. Howe concluded that of the 200 under age 25, 196 could be helped, as well as about 80 percent of the 372 over age 25. "These are the proper subjects of education; they can be taught to do some kinds of labor, to acquire some kinds of knowledge, to attend to their own persons and take care of themselves." He did not minimize the difficulties and the time required for their improvement. "They must have schools, teachers, and apparatus peculiarly adapted to their capacities and powers."

The legislature appropriated $2,500 annually for three years to educate ten "idiots," in order to try the experiment. Thus, the first public residential institution in the United States was born as the Massachusetts School for Idiotic Children and Youth. With the assistance of Eduard Seguin, whom Howe had met in Paris and who came to the United States during the Revolution of 1848, and Dr. Harvey B. Wilbur who had begun a small private school in Boston, the following decade saw the establishment of State schools in New York (1851), Pennsylvania (1853), Connecticut (1858), Ohio (1859), and Kentucky (1860). Some private residential schools were also springing up during this time. It is often said that these early, small and somewhat home-like schools were a failure because Howe and his fellows were too optimistic, unrealistic and naive in their educational expectations; that, in short, they failed because they expected to restore all "idiots" to normal function through intensive special education. That is not the conclusion to be drawn from the records. The schools did not fail. They succeeded in the kinds of improvement Howe and Sequin sought, though not always to the extent they hoped for. A careful reading of the Howe reports and papers suggests that the subsequent change in the institutions was for other reasons entirely. From the beginning, Howe, together with Seguin and Wilbur, insisted that the school be organized "upon the plan of a family" with "a kind and mother person" in care (Howe, Rept. to Mass. Senate #38, 1850); that its sole concern be with education during the "best learning years" and they be "returned to their families." (Wilbur, Rept. of the N.Y. Asylum for Idiots, 1854.) Howe wrote in this 1850 report: In 1852 he expressed disappointment that the pupils referred to him were mostly too old and had too many complicating physical disabilities to be the most favorable subjects, but he recognized that these were the cases most burdensome to their families. He affirmed stoutly in this same report that: this establishment is called a school, and it is a link in the chain of common schools, the last indeed, but still a necessary link in order to make the chain embrace all the children in the State... All are to be kept busy, and rendered industrious, and, if possible, taught some simple and useful work, if it be but doing chores about a house or farm... if they be properly taught and trained to industry, a few of them will earn their living by their work, many of them will contribute something towards their own support and almost all of them will become less burdensome and expensive. (Mass. Rept. to Mass. Senate, Doc. #57, 1852, p. 89) In his 1856 report, Howe noted with concern that: there is the greatest reluctance on the part of parents and guardians to remove those pupils whose terms have expired, partly because they think they are better here, and partly because they dislike to resume the care and responsibility. This is especially true of the most unfortunate children of the lowest idiots... It is clear, then, that... the question will soon come up in a pressing form. What shall be done with those idiots who are past the age of childhood and past the hope of improvement? (Howe, 8th Ann. Rept. 1856, p. 13-16) The enterprise... began with an understanding of its difficulties and with a consciousness that it might be considered by many, a failure, even if it were really successful, because the progress and improvement of a class of idiots would be very slow and small, when compared with a class of ordinary children, as to be overlooked by ordinary observers.. It is hoped that part of them will gain some really useful knowledge; that most of them will become cleanly decent, temperate and industrious; and that all of them will be better and happier from the efforts made in their behalf.

But in the following year, when a bill to provide scholarships for 15 idiotic children from poor families was vetoed, Howe wrote heatedly to the Governor: True it has not changed the nature of any born idiot and given him common sense, and no honest and wise persons have pretended this could be done. But... it has shown that idiots form no exception to the law that every form of organized life is capable of being changed for better or worse by surrounding influences... It has rescued some children of merely feeble minds from the imbecility into which they had fallen... given speech to some who were dumb... many trained to habits of industry. In the same letter to the Governor, Howe noted that "idiotic children are found mostly among the poor and humble... nutrition tells upon brain as well as upon muscle," then launched into a theme which became an increasing preoccupation until his retirement in 1874 the dangers of institutions: In almost all public, charitable and penal institutions with which I am familiar, serious evils arise from violation of the principle that we should separate not congregate... Being called upon lately to give advice about the establishment of institutions for the Blind and Deaf Mutes in a new State, I have counselled a course different from the one I, myself, followed many years ago. It is to dispense with any great costly building, having common dormitories, dining room, chapel and the like. To make no great preparation for any great common household at all; but to build a simple building, with all the conveniences for conducting classes, and make provision for boarding the pupils in private families. In a word to reduce the Institution... to its simplest possible form. This is perfectly feasible in many small towns and villages. (Howe: A letter to the Gov. of Mass. upon his veto of a bill providing for an increase in State beneficiaries at the School for Idiotic Children, Boston, Tickner and Fields, 1857) This anti-institutional view became an increasingly strong conviction for the remainder of his life. In 1866, in a famous speech at the laying of the cornerstone of a new institution for the blind at Batavia, New York, Howe questioned whether the enterprise might not be a mistake:... Society, moved by pity for some special form of suffering, hastens to build up establishments which sometimes increase the very evil which it wished to lessen... Our people have rather a passion for public institutions, and when their attention is attracted to any suffering class, they make haste to organize one for its benefit... All great establishments in the nature of boarding schools, where the sexes must be separated; where there must be boarding in common, and sleeping in congregate dormitories; where there must be routine and formality, and restraint, and repression of individuality, where the chores and refining influences of the true family relation cannot be had, all such institutions are unnatural, undesirable, and very liable to abuse. We should have as few of them as possible, and those few should be kept as small as possible. The human family is the unit of society. (Howe: Ceremonies on laying the cornerstone of the N.Y. State Inst. for the Blind, at Batavia, Sept. 6, 1866) In his final report to the Trustees of the Massachusetts School for Idiotic Children in 1874, as he retired, Howe, reiterated the theme: Now the danger of misdirection in this pious and benevolent work is, that two false principles may be incorporated with the projected institutions which will be as rotten piles in the foundations and make the future establishments deplorably defective and mischievous. These are. first, close congregation; and, second, the life-long association of a large number of idiots; whereas, the true, sound principles are: separation of idiots from each other; and then diffusion among the normal population... For these and other reasons it is unwise to organize establishments for teaching and training idiotic children, upon such principles as will tend to make them become asylums for life... Even idiots have rights which should be carefully considered! At any rate let us try for something which shall not imply segregating the wards in classes, removing them from our sight and knowledge, ridding ourselves of our responsibility as neighbors, and leaving the wards closely packed in establishments where the spirit of pauperism is surely engendered, and the morbid peculiarities of each are intensified by constant and close association of others of his class. (Howe: Rept. of Supt. Oct. 1, 1874)

His was the last voice to speak in this vein for more than half a century. From Residential School to Custodial Institution Even while Howe was inveighing against the evils of continuing custodial asylum for the pupils of the institutional schools, it was, in fact occurring. The great bulk of admissions were from indigent families whose ability to provide even subsistence was extremely limited. All agreed that only a small proportion trained in the institutions would be fully self-supporting on release; and there were no other supplemental supports available. The common fate of the person who was mentally defective was pauperism and assignment to the County Alms House where conditions were appallingly inhumane. In Kentucky, there was a law providing an annual subsidy of $75 for support to the parents or caretakers of an idiot as a buffer against pauperism. Wilbur, in his Annual Report for 1868, noted that when an institution was established in Kentucky (1860) it was expressly for the "teachable" class. "While the other class, including those who were unteachable or too old for instruction, still remained the beneficiaries of the State, under the same conditions as before." Wilbur notes that the annual cost to the State of this subsidy program was about $25,000. Dr. Stewart, Superintendent of the Kentucky institution, noted in 1884 that the cost of subsidies had risen to $80,000 and he did "not think it a good plan." (Natl. Conf. of Charities and Corrections Proc. 1884, p. 367.) The law was rescinded in 1924, to the expressed satisfaction of the proponents of life-care institutions. The chief spokesman for institutional life-time custodial care was Dr. I. N. Kerlin, Superintendent of the Pennsylvania Training School for Feeble Minded Children (Elwyn). In his annual report of 1875, Kerlin attacked Wilbur at Syracuse and Howe at Boston for disguising the true extent of custodial care they were actually offering. He repudiated Howe's "principle of diffusion" of the idiotic throughout the community on the ground that they are in reality "aliens in their own homes, because unlike any other child or member of the family; foreign to the community, because insubordinate to its rules and habits; children always even when men in stature, of necessity they come to be repelled from home and society." He summarily dismissed Dr. Howe's suggestion of "idiots' rights" (I. N. Kerlin, Annual Rept. Pa. School for Feebleminded, 1875, pp. 17-18). Ironically, the year after Dr. Howe's death, in 1876, his successor requested "provision for the custody or protracted care of such children as have no homes to which they can be safely returned after receiving all the training of which they are susceptible... but it would require very considerable additions to our means." (30th Ann. Rept. Mass. School of Idiotic and Feebleminded Youth, 1877, p. 16.) Wilbur's report for 1874 shows a total of six State, one municipal (N.Y.) and two private institutions with a total of 1,282 residents, ranging from five (private school in Boston) to 357 (Columbus, Ohio). The public institutions were now moving rapidly to a dual function of training and custody, with no voice speaking anywhere for meeting the needs of mentally impaired people within the community. The attitude, however, was still essentially benign and humanitarian, the institutional objectives being to provide a better environment and opportunity for improvement to impaired persons and relief to the family and community. It becomes evident, though, that the costs of institutional expansion were meeting with resistance from legislatures and public officials. It took more than a spirit of philanthropy to open the public purse. New stimulation, however, was not long in coming.

In 1876, a year following Howe's death, a group of the superintendents of State institutions, under the leadership of Dr. Seguin organized the American Association of Superintendents of State Schools for the Feebleminded, the progenitor of the American Association on Mental Deficiency. The proceedings of their annual meetings provide some of the early reference material on their discussions and viewpoints. However, they found a wider forum in the annual meetings of another fledgling organization, the National Conference of Charities and Corrections. In most States the administrative control of State-run correctional institutions, mental hospitals, homes for dependent children and institutions for the idiotic and feebleminded was lodged in a single Board of Charities and Corrections. The representatives of these boards, or of the separate functions where no single board existed, organized in 1874 to provide an annual forum for their debates. Here the superintendents found a means of gaining a hearing outside of their own numbers for the expression of issues which rapidly became quite heated. Hence, the Proceedings of the N.C.C.C. constitute the major source for the most important papers delivered by the leaders in the field for a period of 40 years. In 1884 Kerlin delivered a paper to the 11th Conference of Charities and Corrections on "Provision for Idiotic and Feebleminded Children" which was hailed by Fernald, 20 years later, as a "prophetic report... as authoritative today as when it was written... a classic." (National Conference of Charities and Corrections Proceedings, 1904, p. 380.) Kerlin noted that the Federal census of 1880 showed an increase in number of feebleminded of 209 percent over that of 1870, but stated that the total of 76,895 was still an underestimation by "20 or 30 percentum," and that of the total only 2,429 or a little over 3 percent were institutionalized. Of the 3,500 known cases in Pennsylvania he noted that only about one third were in families with the means to pay any substantial amount for care; the balance were in impoverished homes or in county poor houses. Following a description of the ascending gradations of feeblemindedness (1. Idiocy, 2. Idio-imbeciles, 3. Imbeciles, 4. Juvenile insanity) Kerlin then launched into a "practical consideration" of the higher grade and of "juvenile insanity." He noted the close connection of these groups with the impoverished and pauperized families in which crime, prostitution, alcoholism, and other evils abound. Then followed a notable piece of rhetoric. There is no field of political economy which can be worked to better advantage for the diminution of crime, pauperism, and insanity than that of idiocy. The early recognition of some of its special, upper, and more dangerous forms should be followed by their withdrawal from their unwholesome environments and their permanent sequestration before they are pronounced criminals, and have, by the tuition of the slums, acquired a precocity that deceives even experts. Only a small percentage should ever be returned to the community. (I. N. Kerlin: Provision for Feebleminded and Idiotic Children, Natl. Conf. of Charities and Corrections. Proc. 1884, pp. 257-8)

Kerlin added another significant sentence: "American institutions having been already in existence 30 years, it may be asserted that the experimental period is passed, and that, when States shall proceed to legislate for these defectives, it will be done on a permanent basis." Thus, with a sweeping brush, Kerlin transformed the institution from a school from which the "improvable" may return better fitted for social living and an "asylum" for the profoundly impaired who have no community home, into instruments of permanent segregation of the unfit from the community to which they are a menace. This was one of the earliest expressions of "social Darwinism" to appear in the literature of mental deficiency. In a later paper, Kerlin expounded further on a type of defective "in which the congenital deficiency of the moral sense evidences itself: (I. N. Kerlin: The Moral Imbecile, National Conference of Charities and Corrections, Proc. 1890.) Kerlin called this type the "moral imbecile," characterized by only mild intellectual deficiency, but by uncontrolled and vicious behavior originating in childhood. His description corresponds to what we have more recently called "emotionally disturbed" or "sociopathic" children. In fairness to Kerlin, it should be noted that he described this group as a minority of institutional cases, "the black residue of 25 percent." But it was a small step to generalize from the danger of this limited group to the potential danger of all feebleminded. This step was, in fact, taken quite easily in the discussion which followed Kerlin's paper. A Dr. Walk of Philadelphia: "... I think it is time for every American State... to put its idiotic populations under custodial care, not for a day or a week, but permanent care... but if you are going to shut up all the idiotic and feebleminded where they can do no harm, you must do it in some cheap way...." But Kerlin had a ready answer to the problem of cost: As a further practical suggestion, I wish to add that any general State institution for the care of the feebleminded should embrace a department for the care of the moral imbeciles. They can be indentured to work. They can... be drawn into sympathetic contact with helpless idiocy and be made to work towards its nourishment. They need not be taught to read and write; for the school, as ordinarily kept, contributes to their deterioration... I trust that there are... many in this Conference who may see in these suggestions a line to be followed which will lead to the relief of many of our institutions, to a better understanding of this worst form of moral perversion, and to a partial arrest of the apparently increasing degradation of our race. (loc. cit.) Thus were the ingredients assembled for the dehumanization of individuals who are mentally retarded and for their mass care in custodial institutions: The institution was an established model. Its educational mission was not subordinate to custody. Its clientele was firmly linked to poverty, crime, insanity, prostitution, alcoholism, and immorality in general. The mildly retarded group included a class of dangerous "moral imbeciles" who should be permanently sequestered. Mildly retarded people should be indentured to work, to earn their own support and to support by their labor those more helpless. The cost of institutional care can be drastically reduced by use of this labor. An image was emerging of an "alien" in the family of man, dangerous and threatening to social decency. Some features of the emerging image were still obscure. Rapidly they were to be highlighted.

The Demonology of the Defective Four scientific developments, which became popularized in distorted form, helped to fill in the final image of the feebleminded individual as a depraved menace to society: Darwinism, sociological research, Mendelian genetics and psychometry. The evolutionary theories of Charles Darwin emphasized biological adaptation of species to procreate efficiency, available food supply, and to natural hazard. The "survival of the fittest" recognized that those species and their mutations which were best adapted to the conditions of the environment tended to perpetuate themselves, while poorly adapted species tended to disappear. Popularization confused "fitness" with "worthiness" which, in the case of middleclass man in industrial society, became identified with intelligence, industriousness and conformity to a specific moral code of decency. The very high mortality of those who were severely and profoundly impaired "idiotic" provided confirmation of the law as a natural phenomenon, while the linkage of feeblemindedness with poverty and its associated evils made it clear that mentally impaired people were "unfit" to survive in a world in which competition was the first law of nature. The popular understanding of Darwin as a bastion of social decency is expressed by the Governor of Massachusetts in 1883: When the State shall have sufficiently educated every bright child... it will be time enough to undertake the education of the idiotic and feebleminded. I submit that this attempt to reverse the irrevocable decree as to the survival of the fittest is not even kindness to the poor creatures who are at this school... none of the pupils have become selfsupporting... a well cared-for idiot is a happy creature. An idiot awakened to his condition is a miserable one. (Gov. Butler, Address to Mass. Legislature, 1883) Galton in 1901, seeing threatening implications in Darwinian theory with respect To the human race (Possible Improvement of the Human Breed, 1901), proposed that by eliminating the unfit, man could actively assist nature in promoting the survival of the highest quality of human being. Thus the negative eugenics movement, based on "social Darwinism" was launched. In 1877, Dugdale, a prison inspector, published his famous study of the Jukes family. (Dugdale, R.L. The Jukes, New York, Putnam, 1877.) This was a sociological description of the frequency of social degeneracy in a consanguinous family group, with some commentary on the economic costs of society. Dugdale ascribed the misfortune of the Jukes to the unfavorable environments in which they grew up. The treatise was seized upon, however, as evidence of the hereditary nature of degenerative tendencies and such family histories were proliferated during the next several decades. Meanwhile, a myth began to form which ascribed to feebleminded individuals an abnormally strong and utterly ungovernable sexual drive. Even Howe had been alarmed at the "manifestation of the amative feelings" among "idiots" and concluded that "the most lamentable and certain, though less frequent cause of congenital idiocy, is the lasciviousness of some female idiots, whose illegitimate offspring are almost always, like themselves, idiotic and lustful." There is little doubt that the destitute, marginally incompetent woman was victimized by a raw and brutal society "tossed from poorhouse to jail and from jail to poorhouse in which the last trace of womanhood in them is destroyed." (Mrs. C. R. Lowell, 6th Conf. of Charities & Corrections Proc. 1879.) This led in New York to the establishment of a separate institution for feebleminded women at Newark, and to the general practice of the rigid and absolute separation of the sexes at all institutions.

"The isolation from contact or close knowledge of the opposite sex is wholesome in the fact that there are no conditions to excite sexual instincts, which in the defective are usually abnormal." (D. W. Winspear, 22nd Natl. Conf. of Charities and Corr. Proc. 1895.) Fernald, the acknowledged leader for 30 years in the field of mental deficiency, had this to say in 1893: "The tendency to lead dissolute lives is especially noticeable among the females;" and in 1904: "It is well known that feebleminded women and girls are very liable to become sources of unspeakable debauchery and licentiousness which pollutes the whole life of young boys and youth in the community;" and again in 1912: "feebleminded women are almost invariably immoral, and if at large usually become carriers of venereal disease and give birth to children who are as defective as themselves. The feebleminded woman who marries is twice as prolific as the normal woman." (J. of Psycho-asthenics XVII, 1912, pp. 70-91.) Gregor Mendel, whose quiet studies of heredity had lain dormant for decades, was rediscovered in 1900 and provided a new and potent weapon in the indictment of those who are deficient. It had long been suspected that feeblemindedness was inherited. Now science gave the suspicion an authority which was quickly seized upon. The Mendelian laws lent themselves to the belief that feeblemindedness and intelligence constituted distinct and unitary characters as did blue and brown eyes, hence would breed as recessive and dominant characteristics. Normal people may be the carriers of the unsuspected hereditary taint, and the feebleminded people themselves would inevitably transmit the taint to their offspring. Now the true import of the Jukes family became clear not environment but heredity was the cause; and other family histories were rapidly brought forward as further appalling exhibits. In 1912 Goddard published the most famous of all in the story of the Kallikak family. (H. H. Goddard, The Kallikaks, N.Y., MacMillan, 1912), which was taken as indisputable proof of the genetic origin of feeblemindedness. The cause of at least 80 percent of feeblemindedness was asserted to be hereditary. And feeblemindedness was said to be the overriding cause of the degeneracy of lower class humanity and the potential undermining of the human race. One final scientific discovery was added to the evidence of the menace from which society must be protected. In 1905 Binet and Simon developed a technique for distinguishing among children in the schools of Paris those who could succeed in standard school work and those who could not. The Binet test, based on a sampling of verbal and intellectual performance characteristics of children of successive ages, developed an age-scale by which the degree of retardation or advancement could be measured against a norm. Thus the science of psychometrics was born. Binet would have been appalled at the uses to which it was put in the United States. It was seized upon and popularized by Dr. H. H. Goddard, the director of research at the Training School at Vineland, N.J., and by Kuhlman, Terman, and others who refined, perfected, and applied this new and powerful instrument. Originally yielding a measure of "mental age," Goddard was able to reclassify deficient persons in terms of the maximum mental age attained: the idiot not more than a 2-year mentality, the imbecile between 2 and 4 years, and the moron 7 to 12 years. Stern (Stern, W., The Psychological Methods of Testing Intelligence, New York, Warwick, 1904) and Terman (Terman, L. M., The Measurement of Intelligence, N.Y., Houghton Mifflin, 1916), in the United States, by taking the ratio of mental age to chronological age, with 16 as a constant at intellectual maturity, invented the intelligence quotient or "I.Q."